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The 

WHY 

OF 

CIVIL SERVICE 


ISSUED BY 

WISCONSIN CIVIL SERVICE COMMISSION 

A , r‘ 



CIVIL SERVICE COMMISSIONERS. ; 


THOMAS J. CUNNINGHAM, President, 

Chippewa Falls 

OTTO GAFFRON, Plymouth 
PERCY Ap ROBERTS, River Falls 


SECRETARY AND CHIEF EXAMINER 

JOHN A. HAZELWOOD, Madison 


ASSISTANT EXAMINER $ 

HENRY S. KNIGHT '] 

f 

CHIEF CLERK * 

ELSA A. SAWYER J 

DIRECTOR OF THE BUREAU OF EDUCATION AND EFFI(!ENCY 1 

ALLEN M. RUGGLES 1 

Nellie M. Crane, Stenographer [ 

Margaret Foran, Clerk J 

E. Beth Kueltz, Stenographic Clerk * J 

Jennie E. Erickson, Clerk . ^ 

Of D. - 

20 1917 

[2] J 


D. 

FEB 







THE WHY 

OF 

CIVIL SERVICE 


EARLY DAYS. 

Wisconsin was under territorial government 
for ten years. 

On April 17, 1846 the people of the territory 
showed their desire to enter the union as a 
state. The popular vote was 12,334 for with 
2,487 against. 

The First Convention. 

August 1, 1846, Mr. Dodge, governor of the 
territory issued a proclamation calling for a 
convention of 1^4 delegates to draft a consti¬ 
tution. 


[ 3 ] 





The convention was an able body. The 
speeches were of an exceptionally high order 
of excellence. 

In the convention were 69 farmers and 26 
lawyers. We are proud of the citizenship of 
Wisconsin. We are proud that she is known 
abroad as an agricultural state. 

The Constitution Submitted. 

When this constitution was submitted to 
vote of the people April 5, 1847 it was defeated 
by a vote of 20,231 to 14,119. The contest is 
said to have been an exciting one. 

The contest was over the articles relating 
to 

Banks, 

Exemptions, 

Elective judiciary, 

Rights of married women. 

Size of the legislature. 

The people did not all see these problems in 
the same light. Yet who will doubt but that 
practically all were voting for the right as 
they saw it? 


[ 4 ] 



The Second Convention. 

On December 15, 1847 the second constitu¬ 
tional convention came together. Only six of 
those who served at the first convention were 
among those of this second convention. 

On March 13, 1848 the constitution drafted 
by this second convention was adopted by pop¬ 
ular vote with 16,799 ayes and 6,384 nays. 

May 29, 1848 was the day when by act of 
congress and approval of President Polk, Wis¬ 
consin entered the union as a state. 


15 ) 



WISCONSIN BEGINS BUSINESS— 
JUNE 7, 1848. 


Governor Nelson Dewey and his fellow of¬ 
ficials were sworn into office, and the legis¬ 
lature opened its first session. 

Bright Prospects. 

The people of Wisconsin were in business for 
themselves. Their faith in their future was 
strong. The high ideal for the state’s develop¬ 
ment was felt by all. Wisconsin was to be a 
true mother of her own, and a loyal member 
of the Union. Her opportunities were of the 
richest, and her responsibilities were not few 
in number. 

Representative Government. 

Prom each neighborhood throughout the 
state the people sent representatives to the 
capitol at Madison. 

These representatives, called Senators and 
Assemblymen were to advise together in mak- 


[ 6 ] 



ing those laws, which would conform, with the 
spirit of the constitution and would safeguard 
the interests of the people of the state, and 
conserve her wealth and resources. 

Ever since the time of the first legislature in 
1848 the people have been regularly sending 
representatives to the capitol to confer on 
matters of common interest. 


[7J 





BUSINESS UNDER WAY. 


These representatives saw many things that 
needed to be done. Their successors have seen 
many more. The state government must func¬ 
tion in many ways. 

What are some of the things these repre¬ 
sentatives have had. to think about, and con¬ 
cerning which they have taken action? 


Education.— Education is the backbone of a 
democracy. The people of Wisconsin believe 
in the common school. They believe in a sys¬ 
tem of free and public education, in equal op¬ 
portunity to all. 

In 1844 a Rhode Island farmer told Heniy 
Barnard that it would be as sensible to pro¬ 
pose to take his plough away from him to 
plough his neighbor’s field as to take his money 
to educate his neighbor’s children. 

Wisconsin people have not felt as did this 
Rhode Island farmer. The people’s representa- 


[ 8 ] 





tives gladly took upon themselves tile responsi¬ 
bility of public education, and a big responsi¬ 
bility it was. 


Public Health.— The representatives of the 
people further believed that the state ought to 
do all in its power to prevent the spread of dis¬ 
ease and remove all possible causes of sickness. 
In accord with this belief a health department 
was established. 

Professor Smith in his book on Social Pa¬ 
thology says: “The time may come when the 
disgrace of being sick must be borne with a 
sense of shame by the family or the commu¬ 
nity.” 


Prisons and Asylums. —In every community 
are those weak morally and those unbalanced 
mentally. They must not be allowed to run at 
large. It seemed right that the state provide 
places where they could be brought together, 
kept from being of danger to society and if 
possible, restored to normal condition. And 
so these reperesentatives voted institutions of 
this kind, and additional institutions as the 
need arose. 


[91 




Industrial Welfare. —“The note of the old 
legislation was the protection of things; the 
note of the new legislation is the protection of 
men.” 

The workmen of the state must be protected. 
The people of Wisconsin believe in the common 
folks. That is what they are themselves. 
They were going to see to it that their brothers 
in the factories and in the various industries 
should have a square deal and not be oppressed 
by overbearing employers or subjected to un¬ 
necessary danger. So laws were made pro¬ 
viding for just treatment of workmen. 


Other Activities. —Many other activities 
were suggested. Your representatives investi¬ 
gated conditions and where they found a real 
need, laws were passed providing for the sat¬ 
isfaction of such need. 

Then from the start there were activities of 
a business nature that must be attended to. 
The work of the state must be financed, taxes 
must be apportioned and collected, and ade¬ 
quate records of the action of the representa¬ 
tives must be kept. 


[ 10 ] 



MUCH TO DO BUT WHO SHOULD 
DO IT? 


AIL this work required organization. Plans 
had to he made. Many details must be looked 
after. 

There must be administrative heads. There 
must be supervisors, inspectors, and profes¬ 
sional advisors. There must be bookkeepers, 
clerks, and stenographers, janitors, custodians, 
guards and common laborers. 

Your representatives saw the need of all this 
good work. They made the laws. Who was 
to carry on the work and look after the details, 
handle the money and turn it into satisfactory 
results ? 

“For forms of government fools contest, 

Whatever is best administered is best.” 

The representatives must return to look after 
their own business interests. Who should fill 
all these positions? You have not had any 


[111 



say as to who should carry on at first hand all 
this business of the state. 

The men who actually handle the money you 
pay in taxes to the state, who do the work you 
wish done, are not chosen by you. 

Did your representatives choose them? Per¬ 
haps. 


[121 


TAKING THE MATTER HOME. 


There is no need of thinking in the abstract. 
Just take the matter home. Find an example 
in your own community and think about the 
conditions seriously. 

The representative from your district, a man 
of high principles, was backed by one or an¬ 
other of the political parties. Perhaps there 
was a real party boss with a well-organized 
machine of spoils fed henchmen behind him. 
Perhaps your representative was strongly 
backed by the saloonkeeper around the corner 
or the financier who so liberally put up the 
money during the campaign. 

If they are to continue in their support of 
the party, they must receive some of the spoils, 
and they it is who dictated largely whom your 
representative should strive to locate in cer¬ 
tain of these state positions. In fact, your 
representatives selected very few of them, and 
you, the taxpayer, had no voice in the matter. 


[131 



In most states those who earry on the work 
which the lawmakers start, are the friends 
of the political financier, the boss, and the 
ward politician. 

Some of these appointees may be were ef¬ 
ficient, but many were inefficient. It was a 
matter of chance, for friendship was the pri¬ 
mary criterion. 

This is ‘‘Democracy Deformed’’. The 
“Black Peril of the Rule of the Boss.’’ 

The slogan of these politicians was: “To the 
victor belongs the spoils”, and they worked 
it with a vengeance. 


[141 


THEY PAID PARTY BILLS FROM 
THE PUBLIC TREASURY. 


This system of the Bone Hunting politicians 
was pernicious and rotten throughout. Many 
Avere its demoralizing results. 

There were useless positions created to pay 
political debts. 

There were inefficient men in all classes of 
position, who drew big salaries and did little 
work. 

The administrative heads were handicapped 
by the system. They must employ as assis¬ 
tants those who were designated by the poli¬ 
ticians. 

Much of the work of the state was carried 
on in a way that no real business man would 
tolerate in his own establishment for a day. 

The people of the state paid thousands of 
dollars for errors and loss of time due to this 
system of inefficiency. 


[151 





THE DANGERS OF THE SPOILS 
SYSTEM. 

“One of Boston’s aldermen has a brother 
who drew $2.50 a day as a provisional inspec¬ 
tor of lumber, and who did not inspect any 
lumber. 

Eventually this brother was appointed pro¬ 
visional caretaker of horses and his wages in¬ 
creased to $1,400 a year. 

The Civil Service Commission held an ex¬ 
amination, but the alderman’s brother failed to 
obtain a place on the eligible list. It was there¬ 
upon found that the position of caretaker of 
horses at $1,400 was not necessary and no one 
was appointed, a saving to the city of $1,400.” 
—Good Government. 


Professor Willis L. Moore, chief of the 
United States Weather Bureau, speaking of 
the time before the passing of the Civil Service 
law said: “Ido not hesitate to say, corruption 


[161 



was rampant in almost every branch of the pub¬ 
lic service. A man could sell nothing to the gov¬ 
ernment from which somebody did not get a 
rake-off, all the way from the receiving clerk 
up—very high up, sometimes. 

Furthermore, at that time for every position 
there were several unnecessary men, and prob¬ 
ably not more than one out of ten competent 
to perform his duties.’’ 


During the campaign of Garfield and Arthur, 
assessments were openly levied upon office¬ 
holders throughout the country. “A New 
York Police Justice took a room at the Astor 
House, took off his coat, sent for all the clerks 
in the Post Office across the street, and levied 
a tax on each.”—P]. P. Wheeler. 


It has been reported that William M. Tweed, 
who reigned over the city of New York for seven 
years, stole $6,000,000 or more for himself and 
$60,000,000 or more for his followers. 


It was found that in Illinois there were 
thirty legislative employes hired to open and 
[17] 









shut ventilators, and that a great number of 
these employes did not take the trouble to 
show up at all, they simply drew their pay. 

Wisconsin has had experiences similar to 
these, and the taxpayers have paid for them. 

Carl Schurz, who lived for many years at 
Watertown, Wis., said: “So long as public 
offices are a matter of patronage to any extent, 
so long will that patronage exercise a demora¬ 
lizing influence and constitute a most serious 
danger to the working of our democratic in¬ 
stitutions.” 


[181 


THE CHANGE. 


Most all thoughtful folks, even though they 
may have been in the clutches of this per¬ 
nicious system, really agree that all the busi¬ 
ness of the state should be carried on in a 
strict business-like way. Party beliefs may 
differ but in this the people are agreed. 

Public opinion crystallized and in 1905 your 
representatives said: “To the victor belongs 
the spoils” is a pernicious slogan. Parties 
there may be, but party strife shall not inter¬ 
fere with the state’s service to the people. 

The spoils system is not necessary to party 
organization. In England the patronage sys¬ 
tem was thoroughly abolished. In Germany 
there are political parties without the slightest 
vestige of party patronage. 

The patronage system with its sordid selfish¬ 
ness diverts political parties from accomplish¬ 
ing their highest purpose. 

“Who will dare to say that only the citi- 
[19] 






zens of this great republic have become so de¬ 
praved as to be incapable of forming and main¬ 
taining political parties without being paid for 
it with the spoils of office?”—Carl Schurz. 

No person should serve the state who does 
not give value received. 

The person who can serve the people of the 
state most efficiently in a given position should 
be appointed to that position irrespective of 
political affiliation. 

All who desire a position should show their 
fitness in some sort of competitive examination, 
and the appointment should be made from 
those standing highest in this examination. 

When a person has once entered the Civil 
Service of the state he should not be re¬ 
moved from office for political reasons, that is 
with change of administration, but only be¬ 
cause of inefficient service. 

Your representatives specified to what lines 
of state service this law should apply, and cre¬ 
ated a Civil Service Commission to look after 
the administration of this law. 


[201 


THE RESULTS. 


Civil Service Administration is nonpartisan. 

Any person may try for a state position un¬ 
der Civil Service, knowing that ability and not 
‘"pull” will decide whether or not he is ap 
pointed to the service. 

The tax-payers are saved thousands of dol¬ 
lars because those in the various offices of the 
state know their business. They have shown 
their ability in examination. Their past rec¬ 
ord and experience have been carefully inves¬ 
tigated. 

With each change of administration a new 
office force does not have to be broken in. 
Tenure of office is increased. This item alone 
saves the state many dollars. 

Business houses realize that the loss of an 
efficient employe, and the breaking in of a new 
one means money loss. 


The office of second assistant secretary of 
the United States is a political position the 
[ 21 ] 






same as is that of secretary of state and yet 
Mr. A. A. Adee, who was appointed by Presi¬ 
dent Cleveland in 1886, still holds the position. 
He has held the position continuously for 28 
years. He knows so much about the work of 
the department that they can’t get along with¬ 
out him. He gives stability and continuity to 
the work. 


State employes who are efficient under Civil 
Service hold over from one administration to 
another, become more and more efficient, and 
give stability to the work of the various state 
departments. 


In 1904, before the enactment of the State 
Civil Service Law, of those in office in ten de¬ 
partments only 18 per cent had held over from 
1900. 


In 1914, after the enactment of the Civil 
Service law, it is found that 58% of those in 
office in the same departments had held over 
from 1910. 

In many of the state departments of Wis¬ 
consin the amount of work has doubled or 
[ 22 ] 




trebled since the enactment of the Civil Serv¬ 
ice law, and yet the departmental force has in¬ 
creased very little proportionately. 

In the office of the state treasurer the office 
force has even been decreased, and yet the 
amount of business done has greatly increased. 


All this means increased efficiency although 
there is yet plenty of chance for improvement. 

Legislative Employes. 

In most states much money is wasted on 
legislative employes. 

Wisconsin and Colorado are the only states 
where legislative employes are under Civil 
Service. 

In the 1912 report of the Wisconsin Civil 
Service Commission was the following chart 
showing the comparative daily salarly of legisla¬ 
tive employes in nine states. 


[ 23 ] 









DAILY SALARY COST LEGISLATIVE EMPLOYES. 


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[ 24 ] 






Think these things over. Talk them over. 
Find out more about them. 

The next issue of these booklets will be—‘ 

“THE WHAT OF CIVIL SERVICE.” 


[ 25 ] 








Any of the following publications of the 
Wisconsin Civil Service Commission will be 
sent on request. 


“MANUAL OF COMPETITIVE 
EXAMINATIONS.” 

“SPECIMEN EXAMINATION 
QUESTIONS.” 

“LAWS, RULES AND REGULA¬ 
TIONS.” 


Persons interested in any examination are 
requested to write the commission, specifying 
the kind of examination desired so that appli¬ 
cation blanks and circulars may be forwarded 
to them as soon as examination dates are fixed. 


[ 26 ] 


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